In Bata Shoe Company's case, the Supreme Court, which was dealing with Section 84(3) of C.P. and Berar Municipalities Act, which is in pari materia with the provisions of Section 172 of the Maharashtra Municipalities Act, held that Section 84(3) of C.P. and Berar Municipalities Act expressly prohibits challenge to a valuation, assessment or levy, "in any other manner than provided in the Act" and since the Act has devised its own special machinery for enquiry into and adjudicating upon such challenges, the common remedy of a suit stands necessarily excluded and cannot be availed of by a person aggrieved by order of assessment to octroi duty. It was observed by the Supreme Court in this case that since the special machinery was devised for enquiry and adjudicating upon the duty of the tax, the common remedy of suit stands necessarily excluded and cannot be availed by a person aggrieved by the order of assessment. The octroi collected by Municipal Committee of Jabalpur on the goods imported by Bata Shoe Company was subsequently sought to be revised. It was revised and was paid by Bata Shoe Company and further, having paid such revised octroi duty, a suit was filed questioning the legality of refund or opening of the octroi already paid. It was held that the Municipal Committee had jurisdiction to reopen the cases to collect the tax. {Para 6}
7. The Supreme Court interpreted Section 84(3) of the C.P. and Berar Municipalities Act and held that such challenge to the valuation, assessment or levy could not be raised by filing a suit. It was observed by the Supreme Court that the decision of the Municipal Committee could not be said to be without jurisdiction. The case in Bharat Kala Bhandar Vs. Municipal Committee, Dhamangaon, reported in (1965)3 SCR 499 was distinguished by the Supreme Court, in which it was held that the action on the part of the Municipal Committee was unconstitutional. In Bharat Kala Bhandar's case, a suit was filed for recovery of excess tax paid by the plaintiff under Section 66(1)(b) of the Central Provinces Municipal Tax Act, 1922 on the ground that after coming into force of Section 142-A of the Government of India Act, 1935, till January 25, 1950, a tax in excess of Rs.50/- p.a. could not be imposed by the Municipal Committee. It was held in that case that the Municipal Committee had acted unconstitutionally as it was not entitled and it had no jurisdiction to collect tax in excess of Rs.50/-, as laid down under the provisions of Section 142 of the Government of India Act.
8. Thus, in Bata Shoe Company's case, the Supreme Court held that Section 84(3) of C.P. and Berar Municipalities Act expressly prohibited a challenge to the valuation, assessment or levy in any other manner than provided in the Act and since C.P. and Berar Municipalities Act has devised its own special machinery for enquiring into and adjudicating upon such challenges, the common remedy of a suit stood necessarily excluded and could not be availed of by person aggrieved by order of assessment. It was further held that Section 84(3) excluded expressly the power of any other authority than is provided in this Act to entertain an objection to any valuation, assessment or levy of octroi/tax. The provisions of Section 84(3) of C.P. and Berar Municipalities Act, as stated earlier, is in pari materia with Section 172 of the Maharashtra Municipalities Act and, therefore, the suit challenging valuation, assessment or levy of tax cannot be filed. The remedy provided under Section 169 of the Act i.e. filing of appeal before Magistrate and revision against the order of Magistrate will have to be availed of.
9. While deciding the aforesaid Bata Shoe Company's case, the Supreme Court did not disapprove the principles laid down in Bharat Kala Bhandar's case, wherein it was held that the act of the authority was unconstitutional and without jurisdiction, separate suit lay against it. In the case in hand, it is not the case of the plaintiff that the act of Municipality in imposing the tax was unconstitutional or without jurisdiction. On the contrary, the case of the original plaintiff was that the imposition of tax was exorbitant, unreasonable and that the procedure laid down under the Act was not followed. By applying the ratio laid down in Bata Shoe Company's case, this Court has, thereafter, in number of cases, held that the challenge to the procedure relating to the levy of any tax and assessment of the property for the purpose of tax amounts to challenge the assessment itself. When the plaintiff challenges the assessment on the basis that the provisions of the Act had not been correctly appreciated or followed and the tax was levied on the property without any basis, it is nothing but challenging to the assessment itself. It has been held by this Court in the case of Chief Officer, Sangamner Municipal Council Vs. Narayandas Jagannath Karwa (supra) that in such cases the bar under Section 172 of the Act will operate in respect of challenge to assessment on the ground of non-compliance of the Rules or of denial of principles of natural justice and of malice. This has been the consistent view of this Court. This Court, in Gandhi Agencies, Barshi Vs. Municipal Council, Barshi (supra), held that the suit for injunction seeking to restrain the Municipal Council from recovering octroi so as to include amounts allowed as discount in the invoice could only be challenged by way of appeal and revision and that jurisdiction of civil court to try suit is barred. This Court, by another judgment in the case of Ulhasnagar Municipal Council Vs. Arjun Kungooram Balani (supra), held that challenge to demand of Municipal for recovery of taxes by civil suit claiming declaration and injunction was barred under Section 172 of the Maharashtra Municipalities Act and that civil court had no jurisdiction. It was further held that the remedy lies by way of appeal under Section 169 of the Act before the Judicial Magistrate.
10. There is no dispute that in that case the plaintiff, who owned houses within the area of Municipal Council, Aurangabad, was issued with the bills in respect of the house, claiming consolidated property tax and that the original plaintiff, respondent herein challenged this saying that the tax was exorbitant, unreasonable and that the procedure laid down in the Act was not followed. It was never the case and was not shown that the Maharashtra Municipality Act was unconstitutional or without jurisdiction. What was stated was the procedure elapses and that could not be challenged in view of the Supreme Court's ruling in many cases, some of which have been cited in the foregoing paragraphs.
11. The defendant, in its written statement, had taken a plea of bar of civil suit. Both the courts below have erroneously held that the suit was not barred under Section 172 of the Maharashtra Municipalities Act. This Court, after careful consideration of the cases cited by learned counsel for the appellant, and for the reasons recorded in the foregoing paragraphs, holds that the civil suit challenging the valuation, assessment or levy or liability of any person to be assessed or taxed, cannot be questioned by filing suit and that it can be challenged in the manner provided in the Act itself.
Second Appeal No.195 of 1984
5th March, 2004
Citation: 2004(3) ALL MR 532
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